More than the sum of the parts: An early childhood development system for Canada

Transcription

1 More than the sum of the parts: An early childhood development system for Canada Jane Beach and Jane Bertrand Childcare Resource and Research Unit Centre for Urban and Community Studies University of Toronto October 2000

2 More than the sum of the parts: An early childhood development system for Canada Jane Beach and Jane Bertrand Childcare Resource and Research Unit Centre for Urban and Community Studies Occasional Paper 12 October 2000 vi 59 pp. ISBN Childcare Resource and Research Unit Centre for Urban and Community Studies University of Toronto 455 Spadina Avenue, Room 305 Toronto ON M5S 2G8, Canada TEL: FAX: WEBSITE: Cover design: Opus House Canadian Cataloguing in Publication Data Jane Bertrand, 1951 More than the sum of the parts: an early childhood development system for Canada ISBN Child care services Government policy Canada. 2. Early childhood education Government policy Canada. I. Beach, Jane. II. University of Toronto. Childcare Resource and Research Unit. III. Title HQ778.7.C3B C X

3 About the authors Jane Beach has worked in the area of child care and social policy for more than 20 years. Over the years, she has been a centre staff and director, the workplace child care coordinator for the City of Toronto, a program and policy analyst for the Province of Ontario, a co-coordinator at the Childcare Resource and Research Unit at the University of Toronto and the Director of Child Care for the Province of British Columbia. She also conducted and co-authored two national studies on work-related child care and has served on numerous child care boards and committees. For the last five years, Ms. Beach has worked as a child care researcher and policy consultant, involved in a broad range of activities. Most recently, she has worked with the Canadian Union of Postal Workers undertaking several needs assessments, as well as designing, implementing and evaluating child care projects for their members. She was also a researcher in the 1998 sector study of child care and co-author of the report, Our Child Care Workforce: From Recognition to Remuneration, as well as two supplementary papers to the study. Jane Bertrand is a faculty member at George Brown College in the Early Childhood Education Department. She has been on secondment for the past two years to work with Dr. Fraser Mustard, the Hon. Margaret McCain and the Ontario Children's Secretariat in the preparation and subsequent dissemination of the Early Years Study. Jane co-ordinated the research for Our Promise to Children (1997) edited by Kathleen Guy and was a principal researcher for the child care sector study, Our Child Care Workforce: From Recognition to Remuneration.

4 Contents Preface 1 Section 1 Introduction 5 Section 2 The roots of early child development programs in Canada 13 Section 3 The early child development program fragments 25 Section 4 Policy coherence 35 Section 5 An agenda for an early child development system in Canada 45 Table References 55

5 Preface and acknowledgements This paper is one of several intended to consider early childhood care and education within the context of the National Children s Agenda. The National Children s Agenda is both crosssectoral and intergovernmental (with the participation of Health, Social Services or Human Resources, Justice, and Education authorities), a joint provincial/federal initiative. A federal/provincial/territorial working group leads the NCA. Initiated in 1996, the NCA produced Developing a Shared Vision in This document set out four goals for children: physical and emotional health, safety and security, success at learning and social engagement and responsibility. In this context, in September, 2000, the First Ministers came to an agreement on Early Childhood Development services, agreeing on the importance of supporting families and communities in their efforts to ensure the best possible future for their children. Focussing on children and their families, from the prenatal period to age six, the objectives of the ECD initiative are: to promote early childhood development so that, to their fullest potential, children will be physically and emotionally healthy, safe and secure, ready to learn, and socially engaged and responsible; and to help children reach their potential and to help families support their children within strong communities. Specifically, the agreement includes $300 million ($400 million second year, $500 million third, fourth and fifth years) to pay for provincial/territorial programs including any or all of four kinds of services for children: healthy pregnancy, birth and infancy, parenting and family supports, early childhood development learning and care, community supports. The National Children s Agenda and its Early Childhood Development Initiative fall within the social policy context framed by the Social Union Framework Agreement signed by the provinces (except Quebec) and the federal government in February, This paper s contribution to public education and to the policy-making process has been made possible by Child Care Visions, Human Resources Development Canada, whose support we very much appreciate. The views expressed in this publication do not necessarily reflect those of HRDC. Martha Friendly Coordinator Childcare Resource and Research Unit University of Toronto

6 Section I INTRODUCTION At the end of the twentieth century, early childhood education, child care and family support services are unevenly scattered across the Canadian early childhood landscape. Although in any given day, young children and their families may experience several of these programs, there is little coordination or integration among them. Instead, parents face a dizzying array of policies, funding arrangements, eligibility requirements and types of programs. Many parents who are trying both to balance their work and family responsibilities and to meet the developmental needs of their children piece together a variety of arrangements. The nature and success of these arrangements varies by the availability of programs in the community, the parents own financial resources and their particular work and family requirements. Children may be excluded from programs because their parents are not in the labour force, do not meet eligibility criteria or cannot afford the costs. The results are often unsatisfactory for parents and children. Does this make sense? Could there be one integrated approach to children s programs within a coherent policy framework? Should there be? This paper takes the position that a blended, coherent system of early child development programs incorporating child care, early childhood education and family support services should be available in every community. It examines the current array of policies and programs and considers options for developing the proposed system of early child development programs. The paper is organized into five sections: An introduction to early child development programs; The roots of early child development programs in Canada; A description of existing early child development programs; A discussion of dominant public policy directions; A proposed agenda for creating a system of early child development in Canada. Today a fragmented hodge podge of early childhood programs and benefits operate at the margins of education, social services and health care systems, isolated from coherent public policy, funding or planning. A range of program purposes defines different types of programs for young children, although the actual settings and activities may be identical. Children s participation in one program or another is often determined by their parent s employment status or their social-economic circumstances. For many policy-makers, the idea that kindergarten, child care, head start, parenting centres and family resource programs could or even should be integrated into the same policy framework and delivered as part of one blended program is a new and perhaps radical point of view. A novel idea, in Canada at least, but not a new one. [in England] these [infant schools for young children] schools have hitherto been applied (primarily) to the amelioration of the conditions of the poor. There is no good reason however, why they should be restricted to any one class, whilst they are so well calculated for the benefit of all (Russell, 1826, as cited in Pence, 1990, p.90).

7 The language may be dated, but the comment is as relevant today as it was in 1826 when it was made by William Russell, the founder and editor of the American Journal of Education. So is the following observation by J.J. Kelso, an Ontario civil servant responsible for children s aid societies. Play is for young children an absolute necessity. It is quite impossible for them to grow up physically strong and active unless they have abundant opportunities to exercise their bodies and limbs. It is just as impossible for them to grow up morally robust and capable of habitual self-control if they are not allowed constant opportunities to play with other children (Kelso, 1906, as cited in Young, 1994, p.29). Another historical figure in early childhood education, William Blatz, the founder of Toronto s Institute of Child Study in 1942 once remarked that: There is no question today as to the necessity of arranging for the administration of all preschool education [including nursery school and full-day programs} under the proper educational authorities local for immediate and direct responsibility, provincial for supervision, inspection and research, and federal for subsidy and control (Blatz, 1943, as cited in Raymond, 1991, p.195) In fact, there have been many individuals throughout the history of our early childhood and family support programs with much more holistic visions of programs for young children and their families than generally exists in Canada today. WHAT ARE EARLY CHILD DEVELOPMENT PROGRAMS? Child care, kindergarten, head start programs, nursery schools, playgroups, family resource programs, and parenting centres are all designed to meet, at least in part, families and young children s needs. Each of these programs has its own history. Separate programs developed with different mandates supports to parental employment, preparation for compulsory schooling, compensatory education for children atrisk, parent education, and social and peer interaction for young children. These family support programs, child care and early childhood education are all components of early childhood development programs. The Ontario Early Years Study (McCain & Mustard, 1999) and other recent reports have proposed blending these existing components to create coherent systems of early childhood development programs. Parents, children and early childhood development programs Ayesha lives in downtown Toronto. She goes to kindergarten in the local public school every morning and goes home at lunchtime with a neighbour, a regulated family child care provider, who cares for five children in the afternoon. Her mother or father picks her up around 5:30 PM.

8 Carmen is four months old. She lives in a small village outside Halifax. Her mother, receiving maternity/parental leave benefits, is staying at home to care for Carmen for six months. Carmen and her mother meet other parents and infants in a local church basement every Friday morning. The group grew out of a prenatal support group offered by the local public health department; each Friday, the parents set up a floor play space for the infants with equipment and play materials provided by public health. Simon lives in Calgary. He is three years old and goes to a nursery school three mornings a week. His father works a night shift and his mother works at the shopping mall on Thursday and Friday nights and all day Saturdays. One parent is at home with Simon all of the time except for Friday night when he stays with his Grandma. Carla is twelve months old and goes to a child care centre at the university where her dad works. She is often there by 8:00 am and goes home with her dad around 5:00 PM. Elisheva is a four-year-old who is severely brain damaged. She can sit only with support, cannot speak, and needs to be fed. For a year, she has been in a municipally-operated child care centre where a specially trained Resource Teacher provides the extra help that allows her to be part of her group. Her mother and father are both in the labour force. Ian s parents are both professionals working full-time. Almost every day, Ian goes to a communitybased child care centre run by a parent board. His special group of friends includes Tyson, whose mom is struggling to move from welfare to work, Katie, whose parents are both autoworkers, and Liam, a psychiatrist s son. Jessica, who is two-and-a-half, goes with her mother and younger brother to a family resource program two or three mornings a week. Sometimes her mother stays but sometimes she will leave for a couple of hours and then come back for Jessica and her brother. Ayesha, Simon, Carla, Ian, Elisheva, Carmen and Jessica are all in early child development settings. Although the funding, management and administration of the programs differ, their daily activities are similar. If the settings are of high quality, the children are exploring rich social and physical environments that support their healthy development. In each of these settings, the physical environment is set up for children. Carla s infant room has a large open play area with lots of soft cushions and pillows. The wall is lined with a cruising rail for beginning walkers and there are low shelves with several bright toys for shaking, poking, pushing and pulling. Jessica s favourite time at the family resource program is the circle time, when one of the staff or a parent reads stories from picture books and all the children and parents join in songs and child-centred activities. Ayesha s kindergarten, Simon s nursery school, Ian s and Elisheva s child care, and Carla s infant room have circle time too. Simon often plays in the dramatic play centre at his nursery school; there are dress-up clothes and lots of dishes and pots and pans. Simon likes to pretend he is a busy chef at

9 a big restaurant. Ayesha s kindergarten looks a lot like Simon s nursery school. Her favourite place is the art easel with its fresh pots of paint each day. In each of these settings, there are adults who both educate and care for each child as they build relationships that are both responsive and respectful to children s growing competence and abilities to cope. They make sure their needs for food, physical safety, sleep and toileting are met. These adults know that children are not isolated individuals but are part of families, and that support to those families is critically important. There are also other children to play with in each of these settings, and adults who play a role in setting the stage and encouraging the play among the children. Children do not come to an early childhood setting merely to do their learning. Rather, they live in these settings for several hours each week. Just as they are learning at home when they discover how the flusher on the toilet works or how to use simple tools to fix things or how soothing it is to hear dad s voice sing them to sleep, each hour in an early childhood setting is filled with new information and experiences. Most one-, two-, three- and four-year-old children in Canada, however, do not have access to such high quality programs. If their families are low-income, they may be able to get a child care subsidy, and, if they are fortunate, find a space in a high quality child care program. If they are sufficiently disadvantaged, they may be able to attend one of a very few preschool programs aimed at levelling the cognitive playing field and giving them a head start, almost always a part-day program that makes it difficult for their parents to enter or stay in the workforce. In order to participate in the workforce, many moderate-income families juggle schedules and make whatever arrangements they can afford for their children. And unless their parents can pay many children whose mother is not in the paid workforce have no opportunity to go to an early childhood program until their fifth year when most Canadian children have the opportunity to go to publicly-funded, half-day kindergarten. Why are there separate approaches for child care for working parents, early childhood education for children with parents not in the paid labour force, family resource programs that support parenting, and kindergarten programs that have little to do with the places in which many of the same five-year-olds spend the balance of their day? The current fragmentation of programs that isolates the provision of child care, early childhood education and family support programs from each other seems to be related to: The historical development of separate program and policy streams; The idea that middle-class children and children who are perceived to be disadvantaged and at (social and/or economic) risk have different early child development needs; The belief that responsibility for preschool-aged children is solely an individual/family responsibility; The use of demand side subsidies like income tax initiatives and voucher payments for social assistance recipients that isolate care from other early child development opportunities.

10 RATIONALE FOR AN EARLY CHILD DEVELOPMENT FOCUS Two imperatives push for an inclusive, comprehensive system of early child development programs for young children and their families. First, there has been a dramatic increase in the interest in and knowledge about the importance of early experiences for young children. Societies have long acknowledged that the quality of nurturing and stimulation young children receive influences their lifelong abilities and well being. Now the neurosciences, using new technology, are providing compelling evidence to support these beliefs and observations. A clear message emerges from the integration of knowledge from the natural and social sciences. Our early experiences, for better or worse, shape the way we take in new information and react to stress, influencing how we learn and behave and how healthy we are. Secondly, the structure of families and communities in 2000 differs dramatically from families and communities 40 or 50 years ago when most children grew up in environments where fathers worked outside the home and were the chief breadwinners, and mothers were full-time homemakers. In the midtwentieth century, mothers, liberated from the time-consuming drudgery of housework by modern conveniences, turned to childrearing as the focus of their attention. While some children attended nursery school and many attended kindergarten, it was much less necessary to consider parents work schedules in the development of these programs because few mothers worked outside the home. In contrast, today the majority of Canadian children grow up with two parents who both work outside the home in the paid labour force or with a sole support mother who is in the workforce. Public policy that takes a holistic view of children s and families needs by providing blended early childhood development programs does not exist in most of Canada. The much needed programs that serve the developmental needs of children, support parenting, and which operate within hours that allow parents to work are lacking in supply, are often of poor quality, and are too expensive for most families. Unlike kindergarten programs, which have long been recognized as important for children and worthy of public support, child care is still considered largely a private responsibility, requiring parents to buy what they can afford in the marketplace. The following sections of this paper present and analyze the present situation, describe the array of services, and make proposals for the future.

11 Section II THE ROOTS OF EARLY CHILD DEVELOPMENT PROGRAMS IN CANADA The current array of early child development programs in Canada evolved in response to a variety of circumstances and events. Some programs were intended to help the less fortunate or to address problems related to rapid immigration, urbanization and industrialization. Introduction of others was motivated by an understanding of the benefits of early childhood education experiences and their positive impact on children s development. Over the past 75 years, early child development programs have struggled with overlapping mandates and purposes as well as separate administration, legislation and funding. THE 19 TH CENTURY The North American Infant School Movement which began in the 1820s was an early experiment in early childhood care and education (Pence, 1990; Prochner, 2000). The Infant Schools established in Halifax and other young urban centres in Canada were modelled on similar schools established by Robert Owen, a factory owner who wanted to increase the number of workers available in the local community to work in his factory in Scotland. Owen also had a strong commitment to the education of young children. The Infant Schools developed in Scotland, England and North America during the first half of the nineteenth century were early child care and education programs intended to support the education and development of the child while providing care for children while parents worked. Particularly in North America, the philosophy of the Infant Schools put forward the notion that these early education settings were beneficial to all children (Pence, 1990). But by middle of the nineteenth century, Victorian attitudes and beliefs about motherhood brought about the demise of Infant Schools in Britain and the United States (Pence, 1990), although in Canada some continued to operate into the 1870 s (Prochner, 2000). Beginning in the mid-nineteenth century and continuing into the twentieth century in Montreal, Toronto and then other Canadian urban centres, crèches cared for the young children of poor women who were trying to earn a living (Schulz, 1978). Young women who found themselves alone with a child to support in urban settings used these services to care for their children while they worked, often as domestic servants. The crèches were usually provided by charitable organizations driven by the combined efforts of upper class women and private donations. The early crèches typically provided custodial care with an emphasis on hygiene and obedient behaviour. Kindergarten programs were first introduced in Germany by Froebel in (The term kindergarten is a German word meaning children s garden ). Froebel recognized the unique nature of the early childhood period and set out to establish an appropriate system of early education based on the principles and methods of guided play or learning through purposeful activity. Many typical early education practices such as fingerplays or circle time find their early beginnings in Froebel s kindergarten classes. The popularity of Froebel s kindergarten spread to North America and private kindergarten classes began (Corbett, 1989).

12 Recognizing the importance of kindergarten experiences for young children living in inner city environments, the Toronto Board of Education introduced the first Canadian public kindergarten program in 1883 (Prochner, 2000). The introduction of public kindergartens in Toronto responded to concerns about the child s environment in and out of school. Educators saw public kindergartens as an opportunity to provide early learning opportunities as well as care for preschool children (Mathien, 1990). In 1887, Ontario became the first province to officially recognize kindergartens as part of the public school system and to begin to provide grants to schools to establish kindergarten programs for children three to seven years old (Corbett, 1989). These were usually full school-day. Attendance at the kindergarten programs was not compulsory and sometimes parent education was offered in conjunction with the children s kindergarten classes (Varga, 2000). THE EARLY 20 TH CENTURY Around the turn of the 20 th century, educators and policy makers began to extend their beliefs about the educational value of play for young children to older children (Young, 1994). Across Canada, local chapters of the National Council of Women promoted children s playgrounds. In Ontario, the provincial government passed legislation in 1903 that enabled municipalities to purchase land for public parks. Representatives from the school system, women s groups, child welfare organizations and the provincial government organized the Toronto Playground Association to advocate for supervised playgrounds. Similar initiatives are reported in other urban centres across Canada. During the first two decades, public funding grew for playgrounds that offered supervised play for children outside of school hours. By all reports, many of these initiatives resembled high quality school-age child care and recreation programs (Young, 1994). During the first two decades of the twentieth century, the influence of John Dewey s progressive education, the new science of psychology, the child study movement and the influence of Britain s first nursery schools shaped the history of early childhood care and education settings in Canada. In 1926, the St. George s School for Child Study (later the Institute of Child Study) at the University of Toronto opened its doors with both a nursery school for preschool children and an early childhood teacher training program (Raymond, 1991; Schulz, 1978). The program emphasis was clearly on early education and it soon influenced crèches, day nurseries and public and private kindergartens. The St. George s School for Child Study championed the development of nursery schools as early education settings to promote optimal child development. During the 1920s, many crèche programs adopted practices to encourage children s cognitive development as well as their physical well being (Prochner, 2000; Schulz, 1978) and some developed specialized services for children with identified special needs. Family resource programs find their early roots in turn of the century settlement houses and public health initiatives to promote maternal and child health and in early parent education and self-help

13 groups (Kyle & Kellerman, 1998). Public health initiatives brought prenatal and well-baby clinics to communities throughout the province (Arnup, 1994). The St. George s School for Child Study also championed parent education. William Blatz, the founder of the St. George s Nursery School, began an infant-mother drop-in program and promoted parent training through his frequent lectures broadcast on CBC radio (Doyle, 2000; Raymond, 1991). WORLD WAR II AND THE BABY BOOM During World War II, the federal government introduced emergency legislation to establish day nurseries for children of working women, with provision for federal-provincial cost sharing. Both Ontario and Quebec entered into agreements and established preschool and school-age programs (Schulz, 1978). The Institute of Child Study provided a model of operation for the Ontario day nursery programs and directed a shortened training program for staff (Raymond, 1991; Wright, 2000). After the war ended, the federal government stopped the cost-shared program and the Quebec government shut down all the wartime day nurseries programs (Schulz, 1978). Attempts to do the same in Ontario were met with strong resistance and a number of programs survived. However, rather than merging with the school system, they remained separate programs, with some funding from the province and municipalities operated under the authority of the 1946 Day Nurseries Act. The surviving wartime programs joined other day nurseries that had grown out of early crèches as services primarily directed at children in low-income, disadvantaged families. The 1950 s saw a dramatic rise in part-time nursery school programs for the first children of the baby boom (Schulz, 1978). They were seen as enrichment programs for children with a strong emphasis on socialization. Kindergartens for five-year-old children were now part of the public school system in much of Canada and junior kindergarten for four-year-old children had been introduced in Ontario (Mathien, 1990; Prochner, 2000). THE TIMES A CHANGIN During the 1960s, women s participation in the paid labour force escalated and the pressure for nonparental child care began to build. The women s movement gained considerable momentum in focussing attention on women s right to equitable employment opportunities during this period, promoting support for non-parental child care as an essential support women needed to participate in paid work. Child development research on the importance of early experiences for later abilities and the growing movements to end racial segregation and poverty in the United States also pointed to early childhood care and education solutions. During this period, compensatory preschool programs and full-time day care centres emerged across Canada.

14 In 1966, the federal government introduced the Canada Assistance Program, which enabled federalprovincial cost-sharing for day care programs for families in-need, or likely to be in-need. The initiation of the Canada Assistance Plan allowed provincial and federal spending on fee subsidies for regulated child care programs. This combined with the rapid increase in the labour participation of women with young children resulted in more child care centres. By the early 1970 s, day care centres (the term replacing day nurseries) appeared across the country, bringing together programs directed toward low-income working families and those serving a growing number of middle-income families where both parents were either pursuing further studies or employed outside the home. Regulated family child care began to be developed by social agencies and governments across Canada. Some nursery schools expanded into full-day programs. Others, including compensatory preschool programs inspired by the Head Start program in the United States, offered half-day enrichment for young children. Throughout the 1970 s and 80 s, toy lending libraries and parent-child drop-in centres developed as programs separate from nursery schools, day care centres and kindergarten programs (Kyle & Kellerman, 1998). Some were aimed at high-risk families and focussed on enhancing parenting skills; others were aimed at providing informal child care providers with opportunities for peer interaction, training, and group play activities for their charges; still others were aimed at more advantaged at-home parents. Thus, over a century or more, Canadian early childhood programs evolved as three silos: child care, early childhood education and supports to parenting. Today child care centres, nursery schools and preschools operate as regulated (or licensed) programs under provincial/territorial child care legislation with limited public funding. Publicly-funded kindergarten programs are offered to most five-year-old children and some four-year-old children in the school system under the authority of provincial/territorial education legislation, usually on a part-time basis. Family resource programs do not have the same kind of regulatory framework but are shaped by the requirements of a plethora of public and non-government funding sources. These program components rarely connect with each other, and if they do, it is more through the efforts of service providers than through intentional, coherent public policy. In this way, by the end of the 1970s, the foundations of Canada s fragmented early childhood programs were in place.

15 Section III THE EARLY CHILD DEVELOPMENT PROGRAM FRAGMENTS This section provides an overview of the various fragments of early child development programs. Unless otherwise indicated, information is drawn from Early Child Care and Education in Canada: Provinces and Territories 1998 (Childcare Resource and Research Unit, 2000). Comprehensive information is generally not available for any of the early child development programs, however, more is known about those that are legislated and/or regulated. Kindergarten and regulated child care programs are organized with clear boundaries that are defined by provincial/territorial legislation. Family resource programs and prevention/early intervention initiatives are less defined categories that sometimes overlap. Prevention/early intervention initiatives may be delivered within kindergarten, child care programs and family resource programs. This section also outlines income support programs like vouchers and tax measures that affect access to early child development programs. Finally, Quebec s recent child and family initiatives are described. The preceeding table (pg ) summarizes this section. KINDERGARTEN All jurisdictions in Canada offer preschool education through the public school system in the form of kindergarten. (Note. Prince Edward Island has recently announced that it will fund kindergarten for the first time but the programs will continue to be delivered through child care centres.) In all jurisdictions except New Brunswick, attendance is voluntary. Publicly-funded kindergarten, like compulsory schooling, is not a user-pay program. Most Canadian kindergarten programs are part-day and serve five-year-old children; in New Brunswick, Quebec and Nova Scotia, however, kindergarten for five-year-olds operates for the same length of day as primary grades. In Ontario, junior kindergarten is offered to four-year-old children in 68 of the 72 school district boards (McCain & Mustard, 1999). In Quebec and Winnipeg, four-year-old kindergarten programs are offered in some disadvantaged neighbourhoods and in Saskatchewan a publicly-funded preschool program is offered in some disadvantaged communities. It is estimated that more than 95% of age-eligible children attend kindergarten across Canada regardless of parental income level, employment status or family situation. In 1996, approximately 507,000 children attended public kindergartens. CENTRE-BASED REGULATED CHILD CARE AND NURSERY SCHOOLS Apart from kindergarten, centre-based child care and preschool/nursery school is the primary regulated or legislated early childhood program. However, unlike kindergarten, these are not universally available,

16 and, for the most part, are not publicly-operated. (Ontario municipal governments and Quebec school boards operate some child care programs). There are approximately 330,000 regulated part-day and fullday child care centre and nursery school spaces for children 0 to 6 years old in Canada. Regulations, standards and training requirements vary considerably across jurisdictions, as do the types of services available, the ages they serve, the fees and provision of public funds. These regulated child care programs are financed primarily by user fees; limited fee subsidies are available to low-income families who meet employment, income and other eligibility requirements. Within each province or territory (except Saskatchewan and Quebec, which do not regulate part-day programs), the requirements for full-day child care centres and part-day preschool/nursery schools are under the same legislation and are similar. Space requirements, health and safety measures, child/staff ratios and training requirements are generally the same. Full-day centres are most often used by parents who are in the workforce or attending an education or training program while preschool/nursery schools tend to be used by mothers who are not in paid employment and who choose to send their child for social and cognitive development opportunities. Compensatory preschool programs are often both child-and parent-focused. They provide specific activities to reduce children s vulnerabilities and to increase the likelihood of success in formal schooling. They usually include a centre-based early childhood education program for the children and specific supports and services (including home visits, parent supports groups and health and social services) for other family members. These programs are sometimes called head start programs (borrowing the American name of the national Head Start program for low-income children). Compensatory preschool programs are sometimes part of a regulated child care centre or nursery school. They typically offer halfday programs (2 1/2 hours per day), two to five days a week. At the provincial/territorial level, planning of regulated child care and nursery school programs is generally limited. With the exception of Quebec, no province or territory sets target levels of service provision. On occasion, capital, start-up funds or operating grants have been offered to stimulate community interest in starting and running child care centres or nursery schools. REGULATED FAMILY CHILD CARE Regulated family child care, introduced in the 1970s, is provided in a caregiver s home under government regulation. Today all jurisdictions have regulated family child care but regulations and methods of organization are less consistent across the country than those that apply to centre-based programs. There are two approaches to the regulation of family child care in Canada: individual licensing by the provincial government and supervision through a licensed agency. In some jurisdictions, requirements and monitoring are minimal with few supports or resources available to caregivers. In other jurisdictions, caregivers belong to family child care agencies that monitor regularly and are offered a range of supports and regular training opportunities. Neither model has (at best) more than minimal pre-service training requirements for caregivers. Legally, family child caregivers are not considered employees. They usually

17 receive no (or few) benefits and are not usually eligible for paid sick leave, paid vacation, maternity or parental benefits. Family child care makes up approximately 14.7% of total regulated spaces; thus, there are approximately 70,000 spaces for children 0-12 or about 1.2% of the total 0-12 year-old population. Parents who use this form of child care tend to be employed or in training, treating it as a support to labour force participation rather than an early childhood education or child development program. UNREGULATED FAMILY CHILD CARE Much of the child care used by parents in the paid labour force is unregulated, not externally monitored and not funded except indirectly through income tax deductions or vouchers available to some parents. Little is known about these private arrangements including the quality of care provided or relationships to early childhood programs. Unregulated child care may be provided in the child s own home (in-ownhome care) or in the caregiver s home (family child care). Caregivers providing care in the child s home may live with the family or live out. In either case, the caregiver is considered an employee of the parents. Unregulated family child caregivers (like those who are providing regulated family child care) are legally considered to be self-employed. Conditions of employment and care arrangements for in-home caregivers are negotiated directly between parent and caregiver, unless a placement agency is involved. There are minimal requirements that pertain to unregulated family child care and in-own-home care. All jurisdictions legislate a maximum number of children who can be cared for by a family child caregiver. In-own-home providers may be covered by provincial employment standards that specify working hours and other conditions of work. The only form of unregulated child care that requires some amount of caregiver training or experience is that which falls under the federal Live-In Caregiver Program. Under this program, caregivers from other countries may come into Canada on the condition that they work and live in the home of their employer for a minimum of two years. Often agencies facilitate the placement and provide an employer/employee contract. FAMILY RESOURCE PROGRAMS Family resource programs are usually family-focused; activities are oriented both to children and their families or caregivers. They provide a range of services including parent support groups, workshops for caregivers, playgroups, resource and referral, and toy and resource lending but usually their central focus is to provide support to the parent and/or caregiver. Family resource programs may be delivered in conjunction with a regulated child care program. There are approximately 2,000 family resource programs in Canada (Kyle & Kellerman, 1998).

18 A 1994 survey indicated that the number of family resource programs directed to high-risk families had increased over the previous decade (Williams & Kellerman, 1995). Prevention/early intervention activities, such as home visiting, developmental screening and assessment, compensatory preschool activities, parent/caregiver support groups and supplementary nutrition may be delivered to families and young children through family resource programs. Family resource programs receive funding from a variety of sources. Ontario and Newfoundland fund family resource centres as part of the child care system. The federal government s program, Community Action Programs for Children, supports family resource programs in a number of regions across Canada. ABORIGINAL CHILD AND FAMILY PROGRAMS Aboriginal communities may have access to the programs identified above. In addition, there are two specific Aboriginal programs: First Nations and Inuit Child Care, and Aboriginal Head Start. First Nations and Inuit Child Care Until the mid 1990 s, due to lack of agreement about which level of government was responsible for funding, and under what conditions, the supply of early childhood development programs for First Nations communities was very limited in most provinces. There are, however, some exceptions. Ontario has had funded child care and nursery school programs on-reserve for many years under the 1965 Indian Welfare Agreement through the Federal Indian and Northern Affairs Department; these have always been included and regulated under the Ontario Day Nurseries Act. In 1991, the province of Alberta reached an agreement with the federal government for funding on-reserve child care, and in 1994, British Columbia extended grant and fee subsidies to on-reserve populations under the same conditions as other child care programs. Both territories license and fund child care for First Nations and Inuit communities. As part of the 1993 Liberal Party Red Book commitment to child care, dedicated funds were announced to develop child care for First Nation s communities to a level comparable to the rest of the population. Agreement was reached among the federal government, the Assembly of First Nations and the group representing Inuit women, Pauktuutit, for the creation, improvement, administration and operation of a total of 6,000 child care spaces through child care centres and family child care. As part of this process, some First Nations communities are developing their own standards and training requirements. The child care funding arrangements that had previously been established through Indian and Northern Affairs have continued. The federal government committed $72 million for the first three-year development, start-up and operating period, and $36 million annually in ongoing funding for the First Nations and Inuit Child Care Program, an average of $6,000 space (through Human Resources Development Canada). This initiative is promoted primarily as a support to parental employment though, unlike other centre-based child care programs for working parents, it will not be operated on a user-pay basis.

19 Aboriginal Head Start Unlike the First Nations and Inuit Child Care Initiative, the Aboriginal Head Start program was developed to provide services to aboriginal children not living on reserve. It was not conceived as a support to parental labour force attachment but as a culturally-appropriate early childhood development program. Like the First Nations Child Care Initiative, it is 100% funded by the federal government but through Health Canada rather than Human Resources Development Canada. The Aboriginal Head Start programs are not specifically exempted from provincial licensing requirements but they have not been required to be licensed even if they meet the definition of nursery school. However, some have chosen to become licensed. Approximately $62 million was allocated to this program from In 1998, the federal government extended the Aboriginal Head Start Program to on-reserve First Nations communities. INCOME PROGRAMS The federal government is generally responsible for income security programs and the taxation system that has a direct impact on family income. Three income programs are related to early child development programs and the demand for those programs: maternity and parental benefits through Employment Insurance, the Child Care Expense Deduction and the National Child Benefit (NCB). In addition, all of the provinces have some payments for child care for social assistance recipients as part of workfare programs. Other income-related measures, such as the taxation of family income, are also important dimensions of Canada s family policy package. However, the discussion here will take into account only the federal income policy instruments that contribute to resources for early child development. Maternity and parental benefits and leaves Maternity and parental benefits provide some eligible parents with limited financial support while they are away from work following the birth or adoption of a child. Eligible parents may receive 55% of their insurable earnings up to a maximum of $413 per week providing they meet the eligibility requirements of the federal Employment Insurance Act. Since maternity and parental benefits fall under the Employment Insurance Act, those who are self employed or do not have sufficient hours of work to qualify do not have access to any paid time at home with their new child unless they are in receipt of social assistance. Individuals who work for large employers may have access to further payments under a collective agreement or other employment contract. Some contracts provide for top-up maternity payments up to 93% of an employee s previous earnings, payment of the two-week waiting period and sometimes, similar arrangements for parental leave. Jobs with such provisions are often at the higher end of average wage rates, resulting in the

20 situation that those who earn the least often are not able to afford to stay home for very long. The federal government has announced that it will be extending maternity and parental benefits to 52 weeks, effective January 1, Leave provisions are guaranteed within provincial/territorial employment standards. The provinces/territories have relatively consistent maternity leaves: British Columbia, Alberta, Saskatchewan and Quebec allow an 18-week unpaid leave, the other jurisdictions 17. However, the length of parental leave (for new mothers and fathers) varies considerably from jurisdiction to jurisdiction, from none, to 52 weeks unpaid leave for each parent. The eligibility requirements for accessing both maternity and parental leave also vary considerably by jurisdiction. Given the current instability in the job market, a woman may find it more difficult in some provinces to meet the minimum length of continuous service with the same employer in order to be granted a leave, even though she may have the number of hours of work necessary to receive the benefits. The Child Care Expense Deduction The Child Care Expense Deduction allows working parents with receipted child care expenses to deduct up to $7,000 per year from the earned income of the parent with the lower income. For years, this measure has been criticized as both providing a disproportionate benefit for higher earning families and by treating child care as a market commodity; it makes child care more affordable for those who have the purchasing power to buy it. It does not increase the supply of child care nor does it offer any guarantee of quality (Friendly, 1994). Approximately one-third of caregivers in the unregulated sector provide receipts that permit parents to take advantage of the deduction (Cleveland & Hyatt, 1997). Cleveland suggests that the possibility of losing the spousal exemption or receiving reduced social assistance or EI payments may be reasons for not declaring the income, and therefore, not providing receipts to parents. Recipients of Employment Insurance benefits are not able to access the Child Care Expense Deduction. They may be unable to look for work, go to job interviews, or perform volunteer labour that may make them more employable, without child care. In many jurisdictions, a person who becomes and remains unemployed for any length of time is not eligible for a child care subsidy, and either has to remove the child from a program or pay the full fee. In 1995 the cost to the federal government for this deduction was approximately $320 million, and a rough estimate of the cost to the provinces was $160 million (Childcare Resource and Research Unit, 1997). The National Child Benefit The 1997 federal budget announced a new child benefit that combined the existing child tax benefit and the Working Income Supplement to increase federal child benefits for low-income families. As part of the federal/provincial/territorial agreement that established the NCB, provincial governments can reduce

21 their benefits to children in families who are receiving social assistance thus offsetting the increase in federal child benefits. The provinces must then reinvest the resulting savings in other programs for children in low-income families (Battle & Mendelson, 1999). Six provinces used some of their reinvestment envelope for regulated child care services in 1999; these provincial expenditures made up 5% of the total reinvestment funds (Federal, Provincial and Territorial Ministers Responsible for Social Services, 1999). Payments for child care for social assistance recipients Most provinces and jurisdictions provide vouchers or allowances for child care, usually targeted to social assistance recipients. Funding of this type may include those in welfare-to-work programs, and those enrolled in the former Employment Insurance-sponsored retraining programs for which the (federal) Dependent Care Allowance was provided. QUEBEC At the present time, there is one example of an emerging early child development system in Canada. The Quebec government has initiated a coherent system of early childhood centres that complement existing pre and postnatal and family support programs offered through community health and social service centres. In 1996, the government announced a new family policy and subsequently created the Ministry of Families and Children. A centrepiece of the Quebec family policy is a plan to make early childhood care and education child care available to all families for a maximum fee of $5/day, regardless of family income or employment status (for very low-income families, there is an additional subsidy). In September 1997, publicly-operated kindergarten programs for five-year-olds were extended to full-day. Early childhood care and education was extended to four-year-olds through early childhood centres at $5/day. In September 1998, this was extended to three-year-olds, and by the year 2001 is intended to be available to all children for whom space is available. A plan for expansion is an on-going part of the Quebec policy. The family policy also includes a plan to extend maternity and parental benefits to self-employed individuals, and to raise the benefit level to 75% of earnings. This plan has been on hold pending the outcome of discussions with the federal government regarding the use of Employment Insurance funds.